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NEGOTIATIONS FOR THE SHIPMENT OF 
RELIEF SUPPLIES TO POLAND 



MEMORANDA, 



COPIES OF TELEGRAMS AND OTHER COMMUNICATIONS 
BETWEEN THE DEPARTMENT OF STATE AND FOREIGN 
GOVERNMENTS LOOKING TO AN AGREEMENT UNDER 
WHICH RELIEF SUPPLIES MIGHT BE SHIPPED TO POLAND 
TO BE DISTRIBUTED AMONG THE SUFFERING 
INHABITANTS OF THAT COUNTRY 



PRESENTED BY MR. SAULSBURY 

August 30, 1916.— Ordered to be printed 



WASHINGTON 

GOVERNMENT PRINTING OFFICE 

1916 






D. or p. 
SEP 16 I91g 



NEGOTIATIONS FOR THE SHIPMENT OF RELIEF 
SUPPLIES TO POLAND. 



August 28, 1916. 

For many months the department has been endeavormg to brmg 
about an agreement between the various belligerent powers in 
Europe under which relief supplies might be shipped to Poland to be 
distributed among the suffering inhabitants of that country. 

The recent developments and the present situation in this matter 
are as follows: 

On May 22, 1916, the department received through the American 
ambassador at London a printed memorandum from the British 
foreign office stating the terms upon which th'e allied governments 
would permit and assist in furnishing transportation of supplies for 
the reli(if of the civilian population of Poland. This memorandum 
was as follows: 

On the 21st of February last the United States ambassador communicated to Sir E. 
Gray a memorandum embodying the following proposals for affording relief to Poland: 

"There are approximately 15,000,000 people in the German occupied eastern area, 
including Russian Poland and western Russia. Of this population, between 3,500,000 
and 4,000,000 people are concentrated in or in the immediate neighborhood of the 
cities of Warsaw, Lodz, Schenzochow, Vilna, Kovno, and Bella Ettap. 

"In order to handle the problem of provision from a practical point of view, and 
at the same time with proper safeguard as to all the international phases in the matter, 
the following basis is proposed: 

"1. The American commission shall undertake the revictualing of the above- 
mentioned cities only. 

"Tlie German Go^'ernment to undertake to fin-nish to the cities above mentioned 
a supply which will cover a ration of 400 grams of potatoes per diem per capita, 10 
grams of salt, 10 g'rams of sugar, and ;^ grams of tea. 

"The American commission to import cereals to an amount which will afford a 
ration of S40 grams per diem per capita of wheat or beans, peas, rice, maize, also with 
40 grams of fats per diem per capita, and a moderate amount of condensed milk for 
children. 

"2. That the German Government shall undertake to revictual the whole of the 
balance of the population in the occupied territory. 

"3. The German Government will undertake to devise financial means for the 
provision of gold exchange abroad to pay for the foodstuff purchased by the Ameri- 
can commission. The allies to give necessary permits for these financial operations 
by the commission. 

"4. The German Government will make the necessary arrangements to turn over 
to the commission sufficient German shipping to do the entire transportation from 
North America or other places to Danzig. 

"5. The revictualing to last only until the 1st October, at which time the new 
harvest will take care of the entire "civilian population. 

"6. The German Government to undertake that there shall be no interference 
with the imported food.'ituffs; that they will be consumed absolutely by the native 
civilian population; that the American commission will be furnished every facility 
for the control of the entire revictualing of the cities in question, including the 
German contribution to the ration. 

"7. In order to carry out the above it will be necessary to import approximately 
40,000 tons of foodstuffs per month. It is proposed that such portion of these food- 
stuffs as go to the well-to-do population should be sold, and in this particular the 

3 



4 NEGOTIATIONS FOR SHIPMENT OF RELIEF SUPPLIES TO POLAND. 

German Government is prepared to give free railway transport over tne occupied 
areas and one-half railway rates over the German State railroads. It is proposed to 
provision the destitute without cost. 

"His Majesty's Government at once referred the question of principle involved 
in these proposals to the Russian Government, who have now accepted it. His 
.Majesty's Government are accordingly prepared to agree to the immediate inaugura- 
tion of the above arrangement, provided that the German and Austro-Hungarian 
Governments are prepared to give certain assurances. In assenting in principle to 
the grant of relief to a territory occupied by the enemy, in spite of the statements 
recently jiublished by the German authorities that they are in reality able to relieve 
the Poii>^li population unaided, His Majesty's Government feel that they haA'e made 
a concession in return for which they have a right to demand that their enemies shall 
now at hmgth place beyond doubt their intentions toward the populations of occu- 
pied territories whose treatment by them in the past has been so much at variance 
with the responsibilities of civilized warfare and the dictates of humanity. The 
assurances required are as follows: 

"1. The scheme submitted by the United States ambassador relates only to that 
part of Russian Poland at present in the occupation of the German forces. His 
Majesty's (Government consider it essential that any system of Polish relief should 
apply to Russian Poland as a whole, and they can not recognize the existing division 
into two spheres, occupied respectively by German and Austro-Hungarian troops. 
There must be a definite undertaking by the two Governments that the export from 
the whole of Russian Poland of all foodstuffs, native or imported, will be absolutely 
prohibited, and that any excess over domestic needs which may exist in the southern 
part under Austrian administration (which is understood to be self-supporting) will 
be employed exclusively for the provisioning of northern Poland, whether such 
foodstuffs are utilized to supply the towns under the care of the relief corflmission 
or the country districts to be revictualed by the German Government. 

"2. It is understood from a document which has been communicated to His 
Majesty's Government by Mr. Walcott, of the Rockefeller Foundation, and of which 
a copy is annexed to this memorandum, that the German authorities in northern 
Poland undertake that all food supplies originating in Poland shall be used exclu- 
sively for the civil population and the constabulary. His Majesty's GoA'ernment 
can nofadmit that the constabulary should be allowed to use native foodstuffs which 
have subsequently to be replaced by supplies imported by the relief commission. 
They must therefore request that in this respect the constabulary should be placed 
on the same footing as the occupying army. 

";^. From the same document it appears that the German authorities wish to export 
from Poland any excess of the potato supply. As a result of the experience which they 
have gained in connection with Belgian relief, His Majesty's Government are most 
reluctant to agree to the exportation from Russian Poland of so-called excess supplies, 
since the question of what constitutes an excess is largely a matter of opinion. Never- 
theless, in order not to prolong the negotiations, His Majesty's Government agree to 
the export of potatoes at such times and so long as, in the opinion of the neutral relief 
authorities, an excess supply in fact exists over and above the requirements of the 
whole of Russian Poland. 

"4. The German vessels mentioned under paragraph 4 of Mr. Page's proposal must 
fly a neutral flag, be under the sole control of a neutral body to be agreed upon, be 
manned by neutrals, and be run entirely at the expense of the German authorities. 

"5. It should be understood that the responsibility of the German Government is 
not ended by the supply of the partial ration mentioned in the above scheme of relief. 
His Majesty's Government can not undertake to allow the relief commission to import 
more than a minimum supplementary ration over and above the maximum which the 
enemy are in a position to supply at any given time. 

"6. The neutral relief authorities in Poland must enjoy absolutely free and un- 
fettered facilities for the communication to their London office of m\y data connected 
with their work. They must have every facility to satisfy themselves of the manner in 
which the undertakings of the German and Austro-Hungarian Governments are being 
carried out in all parts of Poland. It is, of course, understood that the 'German relief 
officer for the civil population ' mentioned in the inclosed memorandum before alluded 
to shall have no control of any kind over and shall in nowise interfere with the complete 
discretion of the American commission or its representatives. 

"7. The German and Austro-Hungarian Governments should imdertake, as a part 
of the present arrangement, adequately to supply and care for the populations of 
Serbia, Albania, and Montenegro, all of which countries are now being reduced to a 
state of starvation through the removal or the use by the occupying forces of the 
supplies of native foodstuffs. The carrying out of this undertaking should be under 
the supervision of neutral subjects or organizations in those countries. 



ISTEGOTIATIONS FOR SHIPMENT OF EELIEF SUPPLIES TO POLAND. 5 

' ' His Majesty's Government trust that the above proposals, which represent merely 
the renouncement of indefensible practices and assurances for the due respect of the 
lives and rights of the population of occupied territories in the future, will meet with 
the prompt acceptance of the German and Austro-Hungarian Governments, so that 
the necessary preliminary arrangements may be made without delay. 

"Foreign Office, May 10, 1916." 

On May 24 the American ambassador at London notified the 
department that he had transmitted copies of this memorandum to 
the American ambassadors at Berhn and Vienna. 

The department on May 24 notified the American ambassador at 
BerUn and the ximerican ambassador at Vienna to dehver to the 
Governments to which they were respectively accredited a copy of 
this memorandum and to ascertain their attitude. 

On May 31 the department received the following cablegram from 
the American ambassador at Berhn, stating the terms of the agree- 
ment which he thought Germany would make relative to relief 
supplies for Poland : 

Have had conference to-day with Geheimrat Lewald, representing interior depart- 
ment; Geheimrat Grunewalt,' representing foreign office; Prince Lubecki, of Polish 
committee; and Donovan and Stoever, of Rockefeller commission. Germany can 
not accept the proposition as made by England because, first, Germany can contract 
only as to Polish territory in her own control. However, in my opinion there is no 
doubt but arrangement similar to one outlined below can be made with Austria. 
Please note that all towns named are in territory occupied by Germany; second, 
Germany can not make question of relief of Poland dependent on Germany and 
Austria relieving Serbia, Montenegro, and Albania, since Germany is not in control 
of those countries. 

I think an arrangement following lines can be made: 

First. The arrangement to apply to all Polish territory occupied by Germany, 
commencing 50 kilometers back of firing line. 

Second. Germany will give to inhabitants of cities to be relieved the ration 
proposed. 

Third. Germany will undertake the remainder of population outside will be fed. 

Fomth. It is necessary that occupjdng or police army of about 150,000 men be fed 
on food bought in Poland. These troops are sometimes 10 or 15 in a \-illage, and 
difficulties of transport make this necessary. 

Fifth. Proposition as to ships accepted. 

Sixth. Germany will arrange to pay for goods wherever bought and their transport. 

Seventh. Germany agrees to proposition that excess potatoes shall be exported 
only when commission agrees and that no food is to be exported from Poland and used 
except as above stated. Provisions as to details of control can be arranged. Ger- 
many is willing to accept control as stated in contract signed by Geheimrat Lewald, 
Dr. Bicknell, and me in April, 1915. 

Will get details as to numbers of occupying police army and how many in towns 
and how many in country. 

In a supplemental telegram, dated June 13, the American ambas- 
sador at Berlin reports that the foreign office has stated to him that 
the conditions proposed in the above-quoted telegram are entirely 
acceptable to the German Government. 

On June 2 the department quoted by cablegram to the American 
ambassadors at London, Paris, and Petrograd, the cablegram received 
May 31 from the American ambassador at Berlin, and instructed them 
to ascertain and report as to the attitude of the Governments to which 
they were accredited on the position of the German Government 
relative to this matter. 

On June 20 the department received a telegram from the American 
ambassador at Petrograd stating: 

Just had audience with Sazonoff which requested June 6 concerning Poland relief. 
Delay caused by his absence. Declines passing on proposed plan before conferring 



b NEGOTIATIONS FOR SHIPMENT OF EELIEF SUPPLIES TO POLAND. 

with allies. Furthermore, positiA'ely objects to 150,000 soldiers or anything near that 
number being maintained in Poland. Sent Bearing to Sazonoff's assistant during- 
minister's absence June 10, but was told Sazonoff would pass on question himself. 

On June 15 the American ambassador at London received the 
iollowing note from the British Foreign Office, replying to the German 
counter proposals relative to relief work in Poland: 

Foreign Office, 

June 15, ID 16. 

My Dear Ambassador: I have the honor to acknowledge the receipt of your letted 
of June 2 in which you are good enough to communicate the reply received from the 
German Government to the proposals of His Majesty's Government for the relief of 
Poland. 

The i:)hrase somewhat loosely used in this reply as to the arrangement being made 
"to apply to all Polish territory occupied by Germany commencing 50 kilometers 
back of the firing line" is, I suppose, intended to allude only to the responsibility 
assumed by the German Government to feed this area, and does not imply an attempt 
on the part of the German Government to extend the importations of foodstuffs to be 
made by the American commission to any other districts but the cities specified in 
the original proposal which you handed to me and in my reply. His Majesty's Gov- 
ernment could not, of course, for a moment consider importations to other destina- 
tions besides those towns; but I do not know whether His Majesty's Government i^ to 
understand that the German Government intends to allow the population within 50 
kilometers of the firing line to starve. s 

I do not think it is necessary at this point in the discussions to enter into any detailed 
analysis of the German reply, and I will confine myself to the two points of primary 
importance raised in it. 

The German Government disclaims any responsibility for the relief of Serbia, 
Montenegro, and Albania on the ground that it is the Austro-Hungarian Government 
which is in control of those countries. I can not accept this disclaimer, knowing to 
what extent the policy of the central empires is controlled, by the German Govern- 
ment, and knowing that it is therefore not a question of the German Government 
exerting its "good offices" with the Austro-Hungarian Government, but of the two 
Governments jointly assuming a responsibility toward the population whose territory 
has been invaded by their joint armies. Nothing short of a binding engagement of 
this kind, which the central powers are perfectly able to give, can satisfy the Gov- 
ernments of the allies, who, in this matter, are only asking for the same measure of 
joint action on the part of their enemies which they themselves have already taken 
in their consultations and their decision upon this question of Polish relief. 

The second point is, to my mind, of even greater importance. The German Gov- 
ernment disclaims responsibility for the Polish territory occupied by Austria, on the 
ground that that territory is not within the sphere of Germany's control. The Govern- 
ments of the allies regard Poland as a whole and they can not allow the fate of its 
population and the question of life and death, whether that population shall or shall 
not die of hunger, to be parceled out between Germany and Austria, each country 
claiming a part of Poland in connection with their political schemes for the futm-e, 
and each disclaiming responsibility for the part occupied by the other. Until there 
is agreement between the Governments of the central empires to tlu-ow the resources 
of the whole country into one, and to give to the Poles, as Poles, the produce of the 
soil of their own country, the Governments of the allies can not move. This is a 
question of principle, but even were it not so, the conduct of the Austro-Hungarian 
Government, as it is developing at the present moment in southern Poland, would 
make it impossible for His Majesty's Government to leave that region out of account 
in the scheme of relief. I annex hereto a copy of an order issued by the Austrian 
governor general of Lublin which throws sufficient light on the methods of coercion 
and the intentions of exploitation which the Austrian Government are emplojing 
and Cherishing. 

For the rest, we must adhere to our original demands, which I still believe would 
be accepted as reasonable if the German and Austrian Governments were sincere, 
and I can only trust that the efforts of the United States representatives in enemy 
countries and of the representatives of the American relief organizations vdW soon 
elicit a more satisfactory reply from the Governments of the central empires. 

Believe me, my dear ambassador, 
Yours, sincerely. 



NEGOTIATIONS FOE SHIPMENT OF EELJEP SUPPLIES TO POLAND. 7 

The royal imperial and miUtary governor general of Lublin has published the follow- 
ing announcement : 

"In May, when the spring work in the fields will be practically completed, the 
military administration will begin work, within the territory administered by it, 
on the building of roads and on the Vistula. Numerous laborers will be used for 
this pmpose. The military administration ^\i]l summon them from among the local 
population, and form them into labor detachments, each of which will be employed 
as far as possible within its own Adllage or its neighborhood. It will, however, be 
impossible to avoid the employment of some detachments in other districts of the 
Government than their own. It is, however, to be clearly understood that all labor 
detachments will be u^ed exclusively within the territory of the Government of 
Poland in Austro-IIungarian occupation. As need may arise, all men fit for work 
will be called upon. The only exception will be those to whom the district authori- 
ties m.ay grant exemption in consideration of their profession or for other weighty 
reasons, in accordance with instructions issued to them. In case of need also women 
will be employed, provided they come forward of their free will. The workmen 
will be properly paid and fed. 

"The attention of the population is hereby drawn in advance to the forthcoming 
order, and to its purpose, so that no one should give credence to false rumors. As 
work is concerned which will be of considerable economic advantage to the entire 
country, and in connection with which each particular workman will find a sufficient 
livelihood to maintain himself and his family, the military administration expects 
that all men fit for work will apply in their own well-understood interest for inclusion 
in the labor detachments, and "will in that way avoid compulsory orders. The 
intended works are unavoidably necessary from the military point of view, and must 
be carried out in any case. The military administration hopes that it will not be 
necessary to use compulsion. 

' ' For "the Governor General : 

"Lublin, April 26, 1916." 

"DiETRiCHSTEiN, AlajoT General. 

Oil July 5 the department instructed the American ambassador 
at Berhn by cable to present the substance of this note to the German 
Government and to attempt to ascertain its attitude relative thereto. 

The department received no reply to the cablegram sent to the 
American ambassador at Paris relative to the German counterpro- 
posals. 

On June 17 the department received a cablegram from the Ameri- 
can ambassador at Vienna, in reply to its telegram of May 24, stating 
that the Austrian under secretary of foreign affairs had promised to 
hasten reply of the military authorities on whole question of relief 
in Poland, Serbia, Montenegro, and Albania. 

On July 7 the department sent the following telegram to the 
American ambassadors at London, Paris, Berlin, Vienna, and 
Petrograd : 

Inform Government to which you are accredited that since the United States for 
manv months, at the request of the various belligerent powers, has been acting as 
intermediary in the negotiations between the belligerents relative to a proposed agree- 
ment as to the terms under which relief supplies may be introduced into Poland and 
distributed therein, and since all the negotiations have so far failed to result in any 
agreement which could bring about the desired result, although all the countries inter- 
ested have manifested a willingness to permit relief supplies to be sent to Poland 
under certain specified conditions, the United States therefore, in the name and 
interests of humanity, now appeals to all the belligerent countries to consider whether 
it is Jiot possible for" the powers on each side to make such mutual concessions in the 
terms proposed bv them for the regulation of shipments of relief supplies into Poland 
as will make it pos.sible for an agreement to be reached under whiich relief can be 
given to the suffering inhabitants of Poland. The United States is instructing its 
ambassadors to Austria, France, Germany, Great Britain, and Russia to communicate 
this message to the Government to which they are respectively accredited. 

On July 20 the President supplemented the department's appeal 
of July 7 by sending a personal letter to the King of England, Presi- 
dent of France, Emperor of Russia, Emperor of Germany, and 



8 XEGOTIATIONS FOR SHIPMENT OF RELIEF SUPPLIES TO POLAND. 

Emperor of Austria, appealing to each of them to use his personal 
efforts toward the securing of some agreement between the belliger- 
ents which would permit the shipment of food supplies to Poland. 
A co])v of the letter to the King of England was as follows: 

July 20, 1916. 
Your Majes'iy: In view of the overwhelming' disasters which have befallen the 
millions of nonconibatant inhabitants of Poland, I feel justified by the universal 
and earnest expression of the sympathies of the American people, regardless of racial 
origin or political sentiments, to suggest to Your Majesty that the subject of ways 
and means for the saving of those of these people who still survive be given the fur- 
ther benevolent consideration of Your Majesty's Government. While no one can 
fail to appreciate the sufferings and sacrifices of the peoples primarily engaged in the 
existing war, nor the difliculties in the Avay of alleviating the hardships of \hose who 
are the incidental sufferers from the war, the death by slow or rapid starvation of 
millions of innocent people is so awful a fact that such an outcome should be averted 
if it is within the compassof human effort to avert it. In the effort to avert it I con- 
fidently pledge the cooperation of the people of the United States, if only the way 
can be found to make their cooperation effective. May I therefore be permitted to 
suggest that an entirely fresh consideration be given to the possibility and method 
of relief for Poland, and to tender the friendly offices of this Governttient in negoti- 
ations to' this end, it being understood that any plan proposed shall be of such a char- 
acter as to be adapted to the accomplishment of no other result than that of the relief 
of the distressed inhabitants of Poland. In conclusion I can only add that it is 
my sincere hope that Your Majesty will see in this note no intention to interfere 
with the rights and policies of Your Majesty's Government, but merely the attempt 
to express to Your Majesty the sympathy and compassion toward the starving inhab- 
itants of Poland felt by the citizens ox the United States — a sympathy and compassion 
which they do not de-sire shall be evidenced merely by idle words^ but which they 
hope they may be permitted to express by assisting in the actual work of furnishing 
food to the star\-ing inhabitants of Poland. 

I ha\'e the honor to be, Your Majesty, faithfully, youi's, 

Wooj)ROW Wilson. 

The letters sent to the President of France, Emperor of Russia 
Emperor of Germany, and Emperor of Austria were identical with the 
one sent to the King of England, except for the necessary change of 
title. 

On July 11, 1916, Congressman Thomas Gallagher, of Illinois, intro- 
duced the following resolution in the House of Representatives ap- 
proving of the department's action in sending its telegram of July 7 : 

[H. Res. 300, Sixtj'-fourth Congress, first session.] 

IN THE HOUSE OF REPRESENTATIVES. 

July 11, 1916. 

Mr. Gall.\(;her submitted the following resolution; which was referred to the Com- 
mittee on Foreign Affairs and ordered to be printed. 

RF,.SOLl'TION. 

Whereas tlie suffering and distress of the inhabitants of Poland have continued for 
many months on account of the inability of the various belligerent European powers 
to agree upon the terms under which relief supplies may be sent to and distributed 
among tliese unfortunate and starving people; and 

Whereas on July seventh, nineteen hundred and sixteen, at my suggestion, the State 
Department sent a ciirular cablegram relating to this subject, a copy of which is 
hereto annexed, to the American ambassadors in Austria, France, Germany, Great 
Britain, and Russia, to be transmitted to the Governments to which they are re- 
spectively accredited, with the hope that it might result in an agreement being 
reached under which the existing conditions in Poland might be alleviated: There- 
fore be it 
lico'vaf, That this body declare its approval of this action of the State Department 

in thus petitioning the Governments of the aforesaid countries to make such mutual 

concessions as will remedy the indescribable conditions of suffering in Poland. 



NEGOTIATIONS FOR SHIPMENT OP RELIEF SUPPLIES TO POLAND. 9 

Copy of Circular Cablegram Sent by State Department on July 7, 1916. 

Inform Government to which, you are accredited that since the United States 
for many months, at the request of the various belligerent powers, has been acting 
as intermediary in the negotiations between the belligerents relative to a proposed 
agreement as to the terms under which relief supplies may be introduced into Poland 
and distributed therein, and since all the negotiations "have so far failed to result 
in any agreement which could bring about the desired result, although all the countries 
interested have manifested a willingness to permit relief supplies to be sent to Poland 
under certain specified conditions, the United States therefore, in the name and 
interests of humanity, now appeals to all the belligerent countries to consider whether 
it is not possilile for the powers on each side to make such mutual concessions in the 
terms proposed by them for the regulations of shipments of relief supplies into Poland 
as will make it possible for an agreement to be reached under which relief can be 
given to the suffering inhabitants of Poland. The United States is instructing its 
ambassadors to Austria, France, Germany, Great Britain, and Russia to communicate 
this message to the Government to which they are respectively accredited. 

(Signed) Polk, Acting. 

The replies which the departnient has received from the various 
beUigerents to the department's telegram of July 7 are shown in the 
following telegrams and dispatches received by the department 
from its diplomatic representatives in the various belligerent coun- 
tries : 

London, July 27, 1916. 
Secretary of State, Washington: 

Following is text of note just received from foreign office: 

"July 26. 

"I have the honor to acknowledge the receipt of Your Excellency's communication 
of July 8, in which you are good enough to lay before His Majesty's Government an 
appeal to all belligerent Governments to come to an agreement for the relief of Poland. 

"His Majesty's Government desire to settle once and for all the whole question of 
importations of foodstuffs into territory in the occupation of the enemy. They there- 
fore make the following final proposal: K the German and Austro-Hungarian Govern- 
ments will reserve wholly to the civil populations of the territories which their armies 
have occupied, viz, Belgium, northern France, Poland, Serbia, Montenegro, and 
Albania, the entire produce of the soil, all live stock, and all stocks of food, fodder, or 
fertilizers in those territories, if they will admit to those territories neutrals selected 
by the President of the United States with full powers to control the distribution of food 
to the whole poulation and to transfer when necessary and possible from one territory 
to another surplus stocks existing in the one and lacking in the other, and if the Presi- 
dent of the United States will undertake the selection of these neutral agents. His 
Majesty's Government will, on their part, give them every assistance in their power 
and will admit into such territories imported food supplies necessary to supplement 
native stocks and to afford to the populations a fair subsistence ration so long as they 
are satisfied that their enemies are scrupulously observing their part of the agreement. 

"If this offer is refused, or if the German and Austro-Hungarian Governments do 
not reply before the harvest in the occupied territory begins to be gathered, but con- 
tinue to refrain from stating officially for the information of the allied Governments 
their exact attitude in regard to these questions of relief, His Majesty's Government 
will hold them responsible and will exact from them such reparation as can be secured 
by the allied arms or enforced by the public opinion of the neutral world for every 
civilian life lost though insufficient nourishment in every territory occupied by the 
armies of the central powers. 

"It is obvious that if this proposal is to be put into operation successfully, no time 
must be lost. The new harvest will shortly be gathered, and for the plan to be of any 
advantage to the populations of the occupied territories, the fruits of the harvest must 
be placed in neutral control before they have been appropriated for the use of the 
subjects of Germany and Austria-Hungary." 

Page. 



10 NEGOTIATIONS FOR SHIPMENT OF RELIEF SUPPLIES TO POLAND. 

Paris, Jnhj 2fi. 1916. 
Secretary op State, 

Washington. 

Minister for foreign affairs in answer my notes based on your June 2 and circular 
tebgram July 7 states that French Government as well as allies are most desirous of 
aidin? tha suffering population of Poland, and that proposals to that end have been 
mad 3 by Grsat Britain at the request of the allies to the American ambassador at 
L_mdan. Howe /er, attitude adoi)ted by enemy Governments has so far not permitted 
abptlon of these projects. Nevertheless allies through British Government are 
cjiu'niinicating to the Government of the United States a new proposal on the subject 
in liopes of overcoming the difficulties which have opposed the organization of relief. 
Monsieur Briand requests me to inform you that this communication from the British 
Government should be considered as a reply of the French Government to my said 
notes. 

This answer from the French Government appears to have been drawn up before the 
receipt of the President's letter communicated to foreign office on July 25. 

Sharp. 

Berlin, July 29, 1916. 
Secretary of State, 

Washington. 

Department's circular July 7. 

Foreign office replies as follows: 

"From the very beginning the imperial Government declared its readiness to offer 
its assistance in order that the distress apparent in those parts of Russia which are 
occupied by German troops and systematically wasted and deprived of all victuals 
for the use of the remaining inhabitants by the retreating Russian hosts be eased by 
the relief work of the United States of America, which is organized on such a great scale. 
The imperial Government has particularly offered all guarantees consistent with the 
requirements of war that the imported foodstuffs will only serve the needs of the 
populatiqp of the territory occupied. Accordingly the American relief might have 
been realized several months ago with the same provisions as in northern France had 
not the Government of Great Britain prevented its accomplishment by clinging to its 
unfounded and impracticable conditions. In this way it has become practically im- 
possible to convey a considerable amount of foodstuffs from America to Poland by the 
expiration of the term set, as the end of the relief work is October 1. According further 
negotiations are devoid of purpose. But on the other hand, thanks to the intense 
culture of the land effected by the imperial Government by using all the means 
available and every effort possible in the occupied territory, and owing to the favorable 
harvests prospects, a relief action after October 1, 1916, can apparently be dispensed 
with. The fact that the population of Poland and Lithuania will to some extent 
suffer until the new crop is lodged and later on will .sometimes haA'e to put up with 
straightened circumstances can therefore not be laid to the blame of the imperial. 
Government but to that of Great Britain." 

Gerard. 



Vienna, August 7, 1916. 
Secretary of State, Washing torn- 
Ministry for foreign affairs reply as follows to letter from President to Emperor 
provisionally, communicated telegraphically: 

"Reply will be transmitted subsequent to arrival of original letter: in the mean- 
time minister for foreign affairs notifies ambassador for tentative information thq,t 
Austro-IIungarian military authorities cherish lively interest in any measures tend- 
ing to help population of'occupied territories lacking provisions and promote as far 
as possible any effort arrive international agreement for provisioning same. The 
military authorities would obligate themselves not to remove supplies from occupied 
territory in manner and quantity that subsistence of population would be jeopardized. 
They would be prepared guarantee any provisions supplied by neutral countries 
would accrue to benefit of inhabitants of occupied territories and used for no other 
purpose. 

'However, guarantee that other products respective territories will not be used in 
interior could not be given by authorities. Exactly out of these humanitarian con- 
siderations which prompt American relief action, it appears impracticable to the 
military authoritie.s (o prohibit exportation agricultural products from occupied 
territory; for if tra lie between such territories were now stopped (?) inhat)itants of 
Poland always dependent upon export of agrarian products would be most sensibly 



NEGOTIATIONS FOR SHIPMENT OF EELIEF SUPPLIES TO POLAND. 11 

affected therebj^ and hindered in pro\ading those articles of necessity which they 
are accustomed to draw from interior and which must be charitably provided. 

'"Under these conditions Austro-Hungarian military would gladly consider any 
suggestions regarding provisioning of Poland, and awaits with interest the proposals 
of American Government in this regard." 

Penfield. 



Eaibassy of the United States of America, 

Pctrogmd, July .io, 1916. 
The honorable the Secretary of State, 

Washington. 
Sir: On receipt of your circular of July 7, concerning the relief of Poland, directing 
that Russia be requested to effect an immediate arrangement with England, France, 
Germany, and Austria which would admit of relief being extended to Poland from 
America, T asked an audience with M. Sazonoff, of which you have been advised in 
pre\dous dispatches. On the return of M. Sazonoff from the front, July 13, I called 
at the foreign office and asked if any progress had been made toward complying with 
the above-mentioned request. He replied that it had just come to his attention and 
would be attended to promptly. The following day, July 14, he left for Finland, 
having told me he was broken down and needed a rest. The foreign office has njade no 
further reply to that telegram up to this writing. The announcement of M. Sazonoff's 
resignation in the papers of Sunday morning, July 23, removes all probability of any 
further information from him on that subject. The new foreign minister, Mr. Sturmer, 
will not be installed until next Thursday. It is probable that the letter of the Presi- 
dent to the Emperor on the same subject will forestall any action by the department. 
I have the honor to be, sir, 
Your obedient servant, 

David R. Francis. 

Replies have not yet been received to the personal letters sent by 
the President to the King of England, President of France, Emperor 
of Russia, Emperor of Germany, and Emperor of Austria. 

It thus appears that both the allies and the central powers have 
made propositions as to the terms under which relief supplies may 
be sent to Poland; that there are important differences in the terms 
of the two proposals; and that the State J)epartment is endeavoring 
to induce the allies and the central powers to agree upon some plan 
which will permit the sending of relief supplies to Poland. 

No further action can be taken by the State Department until the 
receipt of the replies to the President's letters. 

• O 



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